CHAPTER I

INTRODUCTION

Background of the Study

The government is an essential element of the state. It is the agency wherein the will of the

state is manifested. In democratic country like Philippines, the will of the state is also the will of

the people. The government is also in-charge of making, implementing and adjudicating laws to

regulate the society. Hence, if the government fails in doing their duty, society might fall into

anarchy.

The government can either be unitary or federal wherein their differences lie on how power

is distributed between the national and local government. Philippines has a unitary type of

government where there is decentralization of powers which the national government is the center

of the power because it supervises the local government units. Unitary system maintains a clear

hierarchy between national and local levels, with powers enjoyed by the subordinate units being

delegated by the superior. Thus, “the territorial and political subdivisions shall enjoy autonomy”,

as stated in the Article X, Section 2 of the 1987 Philippine Constitution.

According to the Article X, Section 3 of the 1987 Philippine Constitution, the Congress

shall enact a local government code of which shall provide for a more responsive and accountable

local government structure instituted through a system of decentralization with effective

mechanisms of recall, initiative and referendum, allocate among the different government units

their powers, responsibilities, and resources, and provide for the qualifications, election,

appointment and removal, term, salaries, powers and functions and duties of local officials, and all

other matters relating to the organization and operation of the local units.
 The Local Government Units (LGUs) is the smallest administrative and political

subdivision within a country that delivers public services to citizens and implements national

programs. It has its own fiscal, legislative and executive authority over a defined geographical

area. LGUs operate democratically and consist of three levels: provinces and independent cities,

component cities and municipalities, and barangays. They ensure collective action and promote

citizen welfare (Albarico, 2020).

According to the Title II, Chapter 1, Section 39 of the Local Government Code of 1991,

“an elective official must be a citizen of the Philippines; a registered voter in the barangay,

municipality, city, or province or in the case of a member of the Sangguniang Panlalawigan,

Sangguniang Panlungsod, or Sangguniang Bayan, the district where he intends to be elected; a

resident therein for at least one (1) year immediately preceding the day of election; and able to

read and write Filipino or any other local language or dialect.”

The Local Government Units (LGUs) play a major role in a community’s development,

provides the link between people and government, address its community’s problems and

concerns, enforce policies and hold influence over its communities. The LGUs are also

intermediaries in channeling the framework of government into each individual community in

order to create a beneficial outcome (Javier & Elazigue, 2011).

The Local Government Units (LGUs) play a crucial role in the development and

governance of a nation. The effectiveness of LGUs largely depends on the qualifications of their

officials. In the Philippines, the enhancement of the LGU officials’ qualifications has been a

subject of ongoing debate and discussions, even as part of the classroom discussions as well as in

the markets, which catches the attention of the students and its constituents as a whole.
 A higher level of education among Local Government Unit (LGU) officials generally leads

to a positive impact to their performance, as it equips them with the knowledge, critical thinking

skills, and analytical abilities necessary to effectively manage local issues, implement policies, and

make informed decisions that contribute to overall development and well-being of their

communities; essentially, a more educated officials is better equipped to address complex local

challenges and drive progress ([Link]

National Government Agencies play a significant role in enhancing the qualifications of

Local Government Unit (LGU) officials. They provide various forms of support, training and

capacity-building programs to equip LGU officials with the necessary skills and knowledge to

effectively govern their respective localities.

Some of the roles of national agencies:

• Capacity-Building and Training

The national agencies organize regular training programs tailored to the specific needs of

the LGU officials. These programs cover a wide range of topics, including leadership, governance,

financial management and sustainable development such as DILG, CSC, LGA, COA, etc..

National agencies provide technical assistance to LGUs, helping them in areas like policy

formulation and program implementation. This assistance includes expert consultations,

workshops and mentoring programs.

• Policy Development and Implementation

NGAs develop and implement policies and standards that guide the operation of LGU.

These standards help ensure consistency and efficiency in local governance. It also monitors the

performance of LGUs and provide feedback to help them improve their governance practices.
 • Resource Allocation and Support

NGAs allocate funds to LGUs for various development projects and programs. These funds

can be used to finance capacity-building initiatives, infrastructure development and social services.

It may also provide LGUs with technical equipment and infrastructure such as computers, software

and communication facilities to enhance their operational capabilities.

• Promoting Good Governance and Accountability

NGAs enforce ethical standards and conduct investigations into allegations of

corruption and misconduct among LGU officials. It also promotes transparency and accountability

in local governance by encouraging the use of information and communication technologies and

promoting citizen participation.

Generally, it is anticipated that by working together, both the LGUs and the NGAs can

enhance the qualifications of the local officials, leading to more effective, responsive and efficient

delivery of service of the local officials to attain good leadership and governance at the local level.

Because of this, the researcher is determined enough in finding out the perceptions and prospects

of the head executives of the National Government Agencies in Tawi-Tawi on the existing basic

qualifications of the LGU head executives as well as their prospects on the preferred/projected

additional qualifications for the LGU head executives to address the issue on reviewing the

existing basic qualifications of the elected officials in local government units particularly in the

executive positions.

The researcher’s purpose is to gather all the necessary data as bases for developing a model

which will serve as basis also for the enhancement of the qualifications for the LGU head

executives.
Statement of the Problem

This study aimed to determine the perceptions and prospects of the head executives of the

National Government Agencies (NGAs) on the existing qualifications of the Local Government

Unit (LGU) head executives in the province of Tawi-Tawi as basis for qualification enhancement

model in governance. Specifically, it sought to answer the following questions:

1. What is the respondent’s perception on the sufficiency of the existing qualifications of

the Local Government Unit (LGU) head executives in the province of Tawi-Tawi in

terms of the minimum qualifications, to wit:

a. Natural born Filipino citizen;

b. Registered voter;

c. Residency; and,

d. Able to read and write?

2. What is the respondent’s preferred qualification enhancements for the LGU head

executives in terms of:

2.1. Basic Qualifications; and,

a. Citizenship

b. Voter’s Registration

c. Residency

d. Eligibility

e. Age

2.2. Projected/preferred Additional Qualifications

a. Educational Attainment

b. Socio-economic status
 c. Leadership traits/qualities/styles

d. Leadership experience

e. Moral Character

3. What model can be proposed or developed to improve the existing basic qualifications

for the LGU head executives in the province of Tawi-Tawi?

4. Among the preferred additional qualifications, which is the most dominant?

Hypothesis of the Study

This study believes that there is a negative perception and therefore there is also prospects

of the National Government Agency head executives on the existing qualification standard for

LGU head executives in Tawi-Tawi which means there is a need for qualification enhancement.

Scope and Delimitation of the Study

This study covered and limited only to the perceptions and prospects of all the head

executives of the National Government Agencies (NGAs) here in Bongao, Tawi-Tawi on the

qualifications of the Local Government Unit (LGU) executive positions. And, it does not include

other agencies under the supervision of the BARMM government.

Significance of the Study

This study is significant in the formulation of improved policy on the LGU officials’

qualifications. The perceptions and prospects of the head executives can be used to evaluate the

effectiveness of training and development programs of the local officials. By examining the views

of the head executives, policy-makers can gain invaluable insights into the current state of local

governance and identify areas of improvement. The output of this study can be used to develop

strategies to enhance the capacity performance of the local government, ultimately leading to a

better outcome for citizens. This study provides a model in the formulation of qualification
enhancements for the local officials, particularly on the executive positions. Thus, this will also

provide a baseline data as reference for future studies related to this.

Conceptual Framework of the Study

Figure 1. A Framework on the Perceptions and Prospects of Head Executives of NGAs in Tawi-
Tawi on the Qualification of the LGU Officials: A Qualification Enhancement Model

INPUTS PROCESSES OUTPUTS

This determined the perceptions of Perceptions and
the Tawi-Tawi NGA Head Executives on Prospects of
the existing qualifications of the Local Head
All Head Government Unit (LGU) head executives Executives of
Executives of in the province, as well as their prospect NGAs in Tawi-
the National on the existing qualifications and the Tawi on the
Government preferred additional qualifications as existing
Agencies in follows: Qualifications
Bongao, Tawi- of the LGU
Tawi 1. Basic Qualifications: head executives
a. Citizenship as well as
b. Voter’s Registration proposed
c. Residency improvements
d. Eligibility which resulted
e. Age into the
formulation of a
2. Projected/preferred Additional Qualification
Qualifications: Enhancement
a. Educational Attainment Model
b. Socio-economic status
c. Leadership
traits/qualities/styles
d. Leadership experience
e. Moral Character (no
pending criminal cases or
convicted offense)

Further, this will has identified what

model can be proposed or developed to
improve the qualifications of the LGU
officials in the province of Tawi-Tawi.
 Figure 1 shows the relationship of the variables involved in determining the perceptions

and prospects of the head executives of NGAs in Bongao, Tawi-Tawi on the existing qualifications

of the LGU head executives which has led to the formulation of a qualification enhancement

model. The “INPUTS” focuses on the people involved in the study to answer various statements

and questions to achieve the purpose of the study. On the other hand, the “PROCESSES” focuses

on various questions with specific constructs which are needed to be answered by the respondents

in order to determine their perceptions and prospects on the existing qualifications and prospects

on preferred additional qualifications for the LGU head executives as well as to come up with a

proposal on what is to be improved on the existing basic qualifications, as stipulated in the Local

Government Code of 1991, which served as the basis for the formulation of a Qualification

Enhancement Model as the output of the study.

Theoretical Framework of the Study

To help support the foundation of this study, there are various theories and approaches

which believed to have a relation with this study. To name, the Evolutionary theory; the Social

Contract Theory of Locke (1689); Aristotle’s Political Theory (384-322 BC); Learning Theory on

Behaviorism of John B. Watson (1878-1958) and B. F. Skinner (1904-1990); Learning Theory on

Credentialism of Randall Collins (1979); and the Human Capital Theory of Theodore W. Schultz

and Gary Becker (1960s).

The Evolutionary Theory of the government holds that government emerge naturally as

an association of families, clans and tribes. This theory states that the state evolved over time,

starting with the primitive family. One person in the family was determined to be the leader of the

family. On a primitive level, a basic government was formed ([Link] Government

fills the needs that these other natural groupings generated. This theory helps in the framework of
this study for it is the government that is responsible for the operation of the laws of the land, from

the creation to its implementation in order to address the public interests. In other words, a

proposed model that was developed from this study shall be addressed to the authority i.e. the

government which will take the action to this proposal as a form of addressing public interests.

According to Locke (1690), in his Social Contract Theory, he conceived of the state of

nature not as a condition of complete license but rather as a state in which human, though free,

equal and independent, are obliged under the law of nature to respect each other’s rights to life,

liberty and property. Individuals nevertheless agree to form a commonwealth (and thereby to leave

the state of nature) in order to institute an impartial power capable of arbitrating disputes and

redressing injuries. Thus, Locke held that the obligation to obey civil government under the social

contract was conditional upon the protection of natural rights of each person, including the right

to private property (The Editors of Encyclopedia Britannica, 2025). This is in line with the study’s

idea that each person, regardless of status, must be protected by political leaders in the government

– who are qualified enough to their positions because the people selected them as a representation

of the public in their respective jurisdiction. People agreed to be governed provided that they are

being represented which means their voices are being heard.

Aristotle’s Political Theory holds that humans are believed to be political animals which

signifies that man is a social animal who naturally desires community, to be in association with

others, and that this desire to be in community and association with others constitutes some level

of the good life and brings about happiness (Krause, 2024), and that community (and government)

are necessary for human to flourish. Everyone needs a leader, a leader to govern the community.

He classified government by the number of rulers and their interests. This is in connection with
the study’s goal that people need a competent leader. To be a competent leader, he must meet all

the qualifications needed.

Learning Theory on Behaviorism of J. B. Watson (1878-1958) and B. F. Skinner (1904-

1990) is based on the idea that knowledge is independent and on the exterior of the learner. In a

behaviorist’s mind, the learner is a blank slate that should be provided with the information to be

learnt (Loveless, 2023). This idea is related to how an LGU head executive should look at himself

being a learner and a leader. A leader learns from his people the way how the learners learnt.

Learning Theory on Credentialism of Randall Collins (1979), as a social phenomenon,

refers to reliance upon formal credentials conferred by educational institutions, professional

organizations, and other associations as a principal means to determine the qualifications of

individuals to perform a range of particular occupational tasks or to make authoritative statements

as “experts” in specific subject areas. As an ideology, it reflects the ostensibly meritocratic idea

that positions within the occupational structure ought to be filled by those who have obtained their

qualifications through institutional mechanisms (e.g., training and education within certified

schools; successful completion of formal examinations) culminating in the attainment of degrees,

diplomas, or certificates. As a social-scientific concept, it is closely associated with the discourses

of the sociologies of education and work (Smith, 2018).

The human capital theory posits that human beings can increase their productive capacity

through greater education and skills training (Ross, 2024). As a leader, for him to capacitate his

productivity, he must be educated and well-trained in terms of governance. Leadership is not an

easy task, knowledge and skills are the key elements for a successful leadership.
Definition of Terms

To better understand the concepts presented in this study, the following terms are hereby

conceptually and operationally defined:

Basic Qualification – this pertains to the existing qualifications of the LGU officials as stipulated

in the Philippine Local Government Code of 1991.

Enhancement – this is the process of improving the existing government officials’ qualifications

- which is assumed to have defects.

Ethical Foundation – this is a principle that tells public officials, especially the LGU head

executives, must execute ethical behaviors such as, no involvement in gambling issues, no

marital issues nor pending or convicted criminal case against him.

Leadership Experience – this pertains to the previous leadership role/function of the aspiring

LGU executive official.

Leadership Orientation – this one refers to the idea that an LGU head executive must primarily

adopt a democratic approach in leadership, leaders are expected to be active and "lead by

working," demonstrating hands-on involvement, and they should consistently exhibit

consideration for their constituents.

Leadership Style – this is the quality and strategy done by a political leader to execute his or her

service delivery.

LGU head executives – these are the elected individuals who hold administrative positions of

authority and responsibility within the local government unit in Tawi-Tawi. This includes positions

such as governors, mayors and barangay captains.

Local Government Code of 1991 – it is a Philippine law that provides a framework of

decentralization and local autonomy. It outlines the powers, responsibilities and structures of the
LGUs and guides their operation in delivering services, managing resources, and promoting the

welfare of their constituents.

Local Government Unit in Tawi- Tawi (LGU – Tawi-Tawi) – a political subdivision of the

national government in Tawi-Tawi authorized by the Local Government Code of 1991 to provided

basic services and manage local affairs within the province of Tawi-Tawi.

Model – it is a conceptual framework or representation use in this study that illustrates the key

elements and relationships of the existing qualifications of the LGU executive officials and their

fucntions and duties as elected officials.

Moral Character – officials with no pending criminal cases or convicted offense; no gambling

issues as well as marital issues.

National Government Agencies (NGAs) – these are the government bodies in Tawi-Tawi

established by law to implement national policies and programs across the province of Tawi-Tawi.

They work in coordination with LGUs to ensure the effective service delivery and governance at

all levels.

NGA Head Executives – these are the chiefs/heads of the different national government agencies

in Tawi-Tawi with the exclusion of those under the supervision of the BARMM government.

Perception – it is an observed assessment, opinions, and beliefs that the head executives of the

NGAs in Tawi-Tawi hold about the existing qualifications of the LGU head executives in Tawi-

Tawi.

Preferred Additional Qualifications – these are the prospected qualifications of the NGA head

executives that are added to the basic qualifications for the LGU head executives in Tawi-Tawi.
Prospect – this implies a prediction of the head executives of NGAs about the existing

qualifications of the elected executive officials. It reflects their expectation of whether the officials

will be effective and efficient in the delivery of services.

Proven Administrative Experience – this refers to the administrative role or job of an LGU

head executive prior to his position in the public executive position. In other words, he must have

first an administrative role or a leadership role before he could serve as an LGU head executive

in all levels of LGUs, a neophyte or new to the leadership role is not an ideal one.

Qualification – this refers to a set of requirements and criteria based on the Local Government

Code of 1991, which the locals/aspirants must meet to be eligible to be elected in the public

position.

Qualification Enhancement Model – this is a systematic approach of qualification enhancement

designed to improve the existing qualifications of the LGU head executives in Tawi-Tawi.

Specialized Knowledge – this pertains to the specific field or expertise of an executive leader to

help him with the execution of his power, duties and responsibility as an administrator, generally

as a public servant in Tawi-Tawi.